Case Studies of Local Boards and One-Stop Centers: Underutilization of One-Stops by People with Significant Disabilities

Case Studies 13

This brief is part of a series of products offering practical solutions for state and local entities
as they implement the Workforce Investment Act. Topics covered in other briefs include fiscal
issues, models of involvement for community-based disability organizations, addressing staff knowledge
and concerns, and involvement of state VR agencies with other One-Stop partners. The source of the
information presented below is case studies conducted in Los Angeles, California; Colorado Springs,
Colorado; Wilmington, Delaware; New Orleans, Louisiana; Utica, New York; and Clark County, Washington.
These case studies were conducted by researchers at the Institute for Community Inclusion at University
of Massachusetts Boston.

Introduction

The Workforce Investment Act (WIA) identifies individuals with disabilities as among the
constituencies to be served by One-Stop Career Centers. Due to a variety of factors, including lack of
an overall One-Stop data collection system, no clear way to identify disability in the system, and
non-disclosure of disability by many customers, it is difficult to ascertain the exact level of One-Stop
usage by people with disabilities. However, existing data sources and anecdotal evidence indicate that
people with disabilities underutilize One-Stops. The number of people with disabilities that use
One-Stops seems to be lower than what would be expected based on the percentage of people with
disabilities in the adult population. The disproportionately high rate of un- and underemployment
among people with disabilities makes their underutilization of this career resource a critical issue.

Increasing the use of One-Stops by job seekers with disabilities can be a challenge. Underutilization
may be due to a lack of appropriate services for individuals with more significant disabilities, who may
find visiting a One-Stop an overwhelming experience. At the same time, the philosophy of "universal
access" should ensure that any customer can utilize core services of the One-Stop. People with
disabilities should not have to bypass core services and rely exclusively on disability programs such
as Vocational Rehabilitation (VR). The key is making these generic services welcoming, accommodating,
and tailored to everyone.

Many One-Stops have created successful strategies to increase access for customers with significant
disabilities. The following is offered as a tool for One-Stops to use in their efforts to promote
increased access and meaningful outcomes for job seekers. It is our hope that these examples will
stimulate the development of exemplary employment services for individuals with disabilities in
One-Stops across the country.

Services geared towards the independent job seeker

Respondents explained that services in the One-Stops were primarily self-directed, meaning job
seekers had to be comfortable showing initiative in uncovering resources. While beneficial for the
well-seasoned job seeker, self-directed services are not always appropriate for those with limited
experience using a complex service system. Many services offered in resource rooms are computer-based,
which may be challenging for individuals who have not used computers or who have a limited ability to
follow written instructions. When individuals were unclear about the type of help they needed or
required more intensive support, the experience could be frustrating. Staff members were concerned
that those who needed the most support might be unable to access services due to limitations on staff
time or lack of expertise in supporting people with specific needs.

Perceived disincentives created by performance measures

Individuals with significant disabilities and other barriers to employment often require more
extensive time and support to obtain a job. Performance measures are intended to look at the One-Stop's
activities across all customers and should not be used as a consideration in deciding whether a single
individual should receive those services. Staff occasionally reported hesitation to register or refer
individuals because they were concerned that outcomes might not meet performance measures.

Limited staff training

Staff reported the need for training to better serve customers both with non-apparent or more
significant disabilities. While assisting someone with a physical disability was reportedly less
challenging, staff had greater difficulty when a disability was not easily identifiable and the
individual required more assistance. Staff often felt unclear about how to proceed or how to suggest
other resources that might be appropriate.

Assistive technology: The catch-22

Most sites reported having a variety of assistive technology devices. Although sophisticated (and
expensive) technology had been purchased, staff reported very little demand. As a result, staff had
limited practice with the technology and were not comfortable with their ability to assist someone in
using it. Since they did not use the technology on an ongoing basis, their skills declined. Staff in
Los Angeles described the situation as a "catch-22": customers did not come in to use the equipment
because staff could not provide support, and staff were not familiar with the equipment because people
did not come in to use it.

Strategies for Increasing the Use of One-Stops by
Job Seekers with Significant Disabilities

Create a clear path to services

One-Stops need to provide a clear path to staff-assisted core or intensive services so that
customers can feel comfortable asking for help. This requires strong communication and assessment
and a welcoming social environment that is physically accessible. Techniques include such basics
as clear signage and clearly written materials that outline services and how to access them, with
the information verbally reinforced by staff during orientation and other customer interactions.
All partners can work together to incorporate an assessment of individual customer needs during
the initial orientation to One-Stop services. Staff need to recognize the level of support an
individual requires and adapt service options accordingly. This allows customers to feel safe
advocating for their needs related to learning style, accessibility, mental health concerns,
or other issues. Staff should give clear messages that customers are entitled to accommodations
and specific information on how to access them.

Build supports into core services

Disability coordinators

Los Angeles, California and Clark County, Washington used the strategy of designating one staff
person to have more expertise and time to support people with disabilities. This individual typically
supplemented the roles and responsibilities of front-line staff. In Los Angeles, the coordinator was
considered the "go-to" person to assist staff with disability-related questions. The disability
coordinator not only conducted the initial assessment with the customer but also helped the job
seeker select and access resources. Disability coordinators had superior networking resources in
the community and advocated on customers' behalf. In Clark County, if additional assistance was
required, the individual was offered help from VR staff, although this was not considered a mandatory
outcome.

Consumer navigators

In Colorado Springs, the One-Stop hired consumer navigators to help job seekers with disabilities
use the system. Navigators worked directly with individuals to ensure they had access to the required
services and learned how to "navigate" systems. They also provided resource information and
troubleshooting, and conducted outreach to underserved groups. Although consumer navigators linked the
customers to resources, they were not considered direct service providers. They did not provide
employment services, nor were they evaluators, counselors, or case managers. Rather, the consumer
navigator linked the job seeker with a service provider, often one of the partner agencies in the
One-Stop, that could provide the appropriate supports, training, and information. Through a joint
agreement between the Social Security Administration and the U.S. Department of Labor, funding is being
made available to states to expand the availability of navigators in One-Stops.

Create special teams or committees

Universal Access Committee

The Universal Access Committee in New Orleans was comprised of many members with disabilities and
professionals from disability organizations, including a staff person from the local advocacy center.
This committee served as an ongoing forum for disability-related matters in the One-Stops, addressing
such issues as accessibility, disability training, marketing, and obtaining feedback from customers
with disabilities in a secure, confidential way.

Create external linkages with disability-specific community agencies

Building external linkages increases the likelihood that One-Stop partners will access the
expertise available in the community when providing training on disability issues, considering
marketing strategies, or making decisions about adaptive equipment. For example, the Los Angeles
One-Stops capitalized on the expertise of the Center for Assistive Technology (CAT), based at
Goodwill. The city contracted with CAT, which examined each One-Stop in a consistent manner,
identified technology needs, and made recommendations. The Resource Center for Independent Living,
a partner in the One-Stop system in Utica, New York, provided training on accessibility and adaptive
equipment to One-Stop staff. They not only assisted staff with providing core services but had desk
space and saw their own customers as well as ones from the One-Stop.

Develop methods for addressing concerns over performance measures

If concerns over the ability of people with significant disabilities to meet performance measures
are perceived as a barrier for service delivery, this is a major issue that should be addressed by both
the One-Stop management and the Local Workforce Investment Board. One-Stop management should ensure that
front-line staff have a clear understanding of how performance measures operate and what their
relationship is to service delivery. It should be clear to all staff that every customer is entitled to
core services. In addition, staff should understand that performance measures vary by funding source,
and that WIA performance measures only apply to services covered by WIA funds. Successful One-Stop seek
out a variety of funding sources so that they are able to support individuals in ways that are not tied
to WIA performance measures.

One-Stop partners should discuss this issue with staff and the impact it has on service delivery
decisions. Staff need a true understanding of various performance measures and methods for effective
management. Additionally, the Local Workforce Investment Board should have clear policies regarding
the relationship between service delivery decisions and performance measures. This reinforces the
notion that performance measures should not be a barrier to services for individual customers.

Make assistive technology work for job seekers with significant disabilities

Training and practice

Adequate training on how to operate all facets of assistive technology should be offered, with an
emphasis on staff gaining hands-on experience. For example, in Los Angeles, a technology trainer who
is blind came into each One-Stop, and staff were required to work with her as if she were a customer.
One manager in Utica required all staff to become knowledgeable about the equipment, software, and
material, and to devote a portion of his/her week to assisting customers in the resource area. Another
interesting strategy to continually update and enhance staff knowledge of technology was the creation
of a telephone helpline in Clark County. This allowed staff to connect with a technology specialist who
provided advice and guidance on how to use the equipment. Not all staff members need be experts on all
assistive technology; however, this knowledge is critical for resource room staff. In addition, simple
desk aids with instruction on how to use assistive technology can be an excellent resource for both
staff and customers.

Consider cognitive disabilities

Often the type of adaptive computer technology available in resource rooms does not meet the needs
of people with cognitive disabilities. Specially adapted computer programs for this population are
commercially available, but One-Stops do not not typically have them in the resource areas. Los Angeles
added WYNN Wizard and WYNN Reader software onto their computers to assist job seekers who had learning
difficulties or could not read.

Make the most of limited resources

Assistive technology represents a significant fiscal outlay. As a result, Los Angeles and Utica staff
created a lending library of technology for people who had found jobs through the One-Stop Center but did
not have the funds for technology. If the job seeker needed technology for an interview or assessment,
it was available for use. The job seeker could also "sign out" the equipment during the transitional time
in a new job until the employer could address their technology needs. The Colorado Springs One-Stop
Center applied for special grant funding to pay unemployed computer professionals to provide support
with assistive technology. In Los Angeles, CAT was identified as the one entity responsible for buying
all the adaptive equipment. This created consistency in planning and purchasing, and increased buying
power when ordering large quantities. Clark County created an ad hoc work group that served a similar
purpose, overseeing sharing and borrowing of devices. Finally, the Los Angeles One-Stops became more
selective in their technology purchases by using local demographic information to match assistive
technology purchases with populations served.

Involve job seekers with disabilities and the disability community in service design

It is crucial to hear directly from people with disabilities and the disability community to inform
the design, development, and implementation of services. Two Los Angeles disability provider
organizations, Goodwill and Build Rehabilitation, were critical in establishing the One-Stop
infrastructure. They helped equip One-Stops with assistive technology and arranged staff training on
disability issues. In New Orleans, Goodwill staff gave their input regarding organizational goals,
innovative ideas, and best practice models they wanted to learn more about. The Resource Center for
Independent Living in Utica became involved in planning and has been an active member of the workforce
partnership.

Provide training on supporting people with disabilities

Training and certificate programs can be a resource for building staff capacity and comfort levels
in working with individuals with disabilities. For example, the Legacy training in Los Angeles consisted
of an online course and live classroom training by experts in the disability field. The online course,
which provided participants with foundation and core competency skills, had nine training modules. The
first module introduced participants to the various strategies and the skills needed to provide equal
access to One-Stop programs and services. This gave participants the knowledge to complete more
specialized modules addressing eight major types of disabilities. After successfully completing the
online course and the live training, participants received a certificate.

Focus on recruiting job seekers with significant disabilities

Use disability-specific community-based organizations

A common outreach strategy is to use relationships with community organizations to generate
referrals. Representatives can be invited to participate in special recruitment committees. A
job-shadowing program through the Braille Institute in Los Angeles helped market the One-Stop
to people with visual impairments. Through participation in the program, individuals gained exposure
to the One-Stop and One-Stop staff gained experience in working with job seekers with disabilities.

Create teams and positions

The importance placed on articulating and "selling" programs and services can be seen in the
existence of marketing, outreach, and public relations committees and positions. Formal presentations
and mobile outreach efforts to community groups, centers for independent living, homeless shelters,
and departments of mental health and mental retardation will increase knowledge of services and how
the One-Stops may help their clients. Data is also an effective means for understanding the type of
customer who is accessing services, and can be useful for marketing to specific groups.

Conclusion

There is a wide range of strategies for creating a welcoming environment for individuals with
significant disabilities. Many require relatively minor adaptations that lead to significantly enhanced
capacity to meet the needs of all customers. Each of these techniques has enhanced the use of One-Stops
for job seekers with disabilities. We offer these strategies to provoke discussion and creativity among
One-Stops as they consider their own needs and challenges that they face in effectively serving all job
seekers effectively.

If you have comments or questions on this publication, or need additional information please contact:

This is a publication of the Center on State Systems and Employment (RRTC) at the Institute for
Community Inclusion funded, in part by the National Institute on Disability and Rehabilitation Research
of the U.S. Department of Education. This research was also supported by the Academy for Educational
Development through a subcontract from the Office of Disability Employment Policy/U.S. Department of
Labor. The opinions contained in this publication are those of the grantees and do not necessarily
reflect those of the U.S. Department of Labor or the U.S. Department of Education.

The authors would like to thank the participants for their time and support of this research project.
We would also like to thank David Hoff, Cori DiBiase, Elena Varney, Danielle Dreilinger, Allison Cohen,
Sheila Fesko, and Heike Boeltzig for their editorial assistance.

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